Food policies, family farming, and climate justice in the Amazon towards COP30ABSTRACT
OBJECTIVE To analyze the sustainability of the food system in the Belém Metropolitan Region, based on the interface between public institutional purchasing policies (National School Feeding Program and Food Acquisition Program), considering local production, the profile of spending, the appreciation of family farming, and the principles of climate justice.
METHODS The analysis of the National School Feeding Program was based on data from the School Census (profile of schools and students) and invoices from the Accountability Management System (amounts and types of food from family farming), both from 2022. The food was classified into 12 groups. The characterization of family farming and the data from the Food Acquisition Program were based on reports on urban and peri-urban agriculture and the mapping of settlements.
RESULTS The Belém Metropolitan Region has 929 public schools and 390,552 students. In 2022, the municipalities allocated 31 million reais to the National School Feeding Program, of which 43.5% came from family farming, exceeding the legal target. Fruit accounted for the largest amounts invested, followed by vegetables and spices. In the Food Acquisition Program, the Abril Vermelho (Red April) settlement sold 28 tons of food, especially fruit, vegetables, and tubers, with pumpkin and cassava root being the foods with the highest volume, and spring onions and pepper the ones with the highest financial value. Production prioritized permanent crops, agro-ecological practices and culturally significant foods.
CONCLUSIONS The results show the potential of the National School Feeding Program and the Food Acquisition Program in the Belém Metropolitan Region to strengthen family farming, promote healthy and sustainable eating, value regional products, and contribute to environmental recovery. These policies represent strategic instruments for integrating food security and climate justice, by promoting low-impact local production, recognizing inequalities, and increasing the resilience of food systems, in line with the COP30 objectives.
DESCRIPTORS
Public Policy; School Feeding; Climate Change; Social Justice; Agriculture; Food Supply
RESUMO
OBJETIVO Analisar a sustentabilidade do sistema alimentar na Região Metropolitana de Belém, a partir da interface entre políticas públicas de compras institucionais (Programa Nacional de Alimentação Escolar e Programa de Aquisição de Alimentos), considerando a produção local, o perfil dos gastos, a valorização da agricultura familiar e os princípios da justiça climática.
MÉTODOS A análise do Programa Nacional de Alimentação Escolar baseou-se nos dados do Censo Escolar (perfil de escolas e estudantes) e em notas fiscais do Sistema de Gestão de Prestação de Contas (valores e tipos de alimentos da agricultura familiar), ambos de 2022. Os alimentos foram classificados em 12 grupos. A caracterização da agricultura familiar e os dados do Programa de Aquisição de Alimentos fundamentaram-se em relatórios de agricultura urbana e periurbana e em mapeamento de assentamentos.
RESULTADOS A Região Metropolitana de Belém possui 929 escolas públicas e 390.552 estudantes. Em 2022, os municípios destinaram 31 milhões de reais ao Programa Nacional de Alimentação Escolar, dos quais 43,5% foram provenientes da agricultura familiar, superando a meta legal. As frutas representaram os maiores valores investidos, seguidas por verduras e temperos. No Programa de Aquisição de Alimentos, o assentamento Abril Vermelho vendeu 28 toneladas de alimentos, com destaque para grupos como frutas, legumes e tubérculos, sendo a abóbora e a raiz de mandioca os alimentos com maior volume, e a cebolinha e a pimenta os de maior valor financeiro. A produção priorizou lavouras permanentes, práticas agroecológicas e alimentos culturalmente significativos.
CONCLUSÕES Os resultados evidenciam o potencial do Programa Nacional de Alimentação Escolar e do Programa de Aquisição de Alimentos na Região Metropolitana de Belém para fortalecer a agricultura familiar, promover a alimentação saudável e sustentável, valorizar produtos regionais e contribuir para a recuperação ambiental. Tais políticas representam instrumentos estratégicos para integrar segurança alimentar e justiça climática, ao promover produção local de baixo impacto, reconhecer desigualdades e ampliar a resiliência dos sistemas alimentares, alinhando-se aos objetivos da COP30.
DESCRITORES
Política Pública; Alimentação Escolar; Mudança Climática; Justiça Social; Agricultura; Abastecimento de Alimentos
INTRODUCTION
Climate change has immediate and noticeable impacts on food systems, as its effects directly involve production, processing, distribution, and consumption of food across the planet, as well as exacerbating social inequalities on a global scale1.
Changes in temperature, rainfall patterns and the intensification of extreme weather events jeopardize the ability to guarantee Food and Nutrition Security (FNS) for the population2, especially among vulnerable groups. It is therefore essential to discuss the relationship between food and sustainability in all its dimensions, since the prevailing global food system is both the cause and consequence of various problems related to climate change. The way food is produced and distributed has a negative impact not only on human health, but also on planetary health3.
In November 2025, Belém will host the 30th Conference of the Parties (COP) to the United Nations Framework Convention on Climate Change (UNFCCC), an international agreement to curb global warming and reduce greenhouse gas (GHG) emissions4. Brazil, the host country, stands out for its global leadership on socio-environmental issues, but its internal actions reveal contradictions, such as the approval of Bill 2159/2021 (known as the “PL da Devastação”)5 and the proposal to explore for oil at the mouth of the Amazon River. This ambiguity is also expressed in the persistence of an economic model strongly based on the production and export of commodities, which keeps Brazil among the largest global emitters of GHG6.
Around 74% of Brazilian emissions are directly or indirectly associated with agricultural activity, including deforestation, pasture, and monoculture production7. This percentage is higher than the global average, where around a third of emissions are attributed to food systems8. Despite its relevance, the agri-food sector remains under-represented in international climate discussions: only half of the countries have included specific targets for the sector in their Nationally Determined Contributions8.
The COP30 in Brazil represents a strategic opportunity to include key issues on the global agenda, such as the transformation of food systems and financing for adaptation, mitigation, and just transition in the face of climate change9,10. In this context, the concept of climate justice has gained prominence by highlighting the unequal and unfair distribution of the environmental and social impacts of climate change11. This perspective reveals that peoples and communities with production practices more aligned with environmental conservation are precisely those most affected by the effects of hegemonic production models, marked by high GHG emissions and concentration of political and economic power.
Brazil has experience in issues and instruments related to agroecology, agroforestry systems (SAFs), local food production, urban agriculture, and public policies for government purchases from family farming that can inspire practices for fair and sustainable food10. In Belém, most of the urban and peri-urban agriculture is family-based and aimed at commercialization, although it also contributes to self-consumption12. This production, with low dependence on external inputs, especially chemicals, favors the transition of production systems to agroecological models, in addition to supplying the capital with culturally significant foods, such as cassava (Manihot esculenta), jambu (Acmella oleracea) and açaí (Euterpe oleracea), the latter of which, although showing growth in cultivation, remains mostly from extractive activity12.
Given this panorama, it is essential to promote policies that support the transition to healthy and sustainable food systems. Of particular note is the Programa Nacional de Alimentação Escolar (PNAE – National School Feeding Program), which promotes FNS for approximately 40 million public school students daily, by transferring federal funds to states and municipalities to provide school meals13. According to Law No. 11.947/200914, at least 30% of these funds must be allocated to the direct purchase of food from family farming, prioritizing agrarian reform settlements and indigenous and quilombola communities. These guidelines aim to promote access to healthy food and value food culture and agroecological/organic production15. Another institutional purchasing policy that aims to promote FNS is the Programa de Aquisição de Alimentos (PAA – Food Acquisition Program), created in 2003 and run by the Ministry of Social Development and Fight against Hunger (MDS) in partnership with states, municipalities and the Companhia Nacional de Abastecimento (CONAB – National Supply Company). Its aim is to promote access to food and boost food production by family farmers16.
Considering the strategic importance of the Amazon and Brazil’s leading role in COP30, understanding the connections between FNS and socio-environmental impacts becomes even more relevant. For this reason, this study aims to analyze the sustainability of the food system in the Belém Metropolitan Region (RMB), based on the interface between public institutional purchasing policies (PNAE and PAA), considering local production, the spending profile, the appreciation of family farming, and the principles of climate justice.
METHODS
The analysis of the profile of schools and students served by the PNAE was based on data from the 2022 School Census, considering the number of schools and enrolments, location, and stages of education17.
The amounts spent and types of food purchased from family farming suppliers by the municipalities of the RMB with federal PNAE funds were analyzed. The research used invoice data from 2022, available on the federal government’s Sistema de Gestão de Prestação de Contas (SiGPC –Accountability Management System), extracted from the website in June 202518.
The classification of foods was based on the names described on the invoices and their grouping according to how they were consumed, their nutritional value, their cultural importance, or the degree of processing. For example, the “fruit” group included fresh or pulped fruit, and “spices” included garlic, onions, and herbs. Processed foods such as cookies and yogurt were classified as “processed”. In total, the foods were grouped into 12 groups: Fruits, Vegetables, Spices, Flour, Eggs, Legumes, Meat, Tubers, Processed, Peach-palm fruit, Beans, and Breads.
In the RMB, this study was based on two main sources: the report on Urban and Peri-urban Agriculture by Instituto Escolhas12, which subsidized the analysis of land use and occupation and the identification of production profiles; and the Assisted Natural Regeneration (ANR) Project in Pará and Mato Grosso, developed by WRI Brazil in partnership with the Landless Rural Workers’ Movement (MST)19, which carried out participatory mapping and georeferenced data collection in five settlements in the RMB, identifying areas with SAFs and ANR. The integration of field data and satellite images enabled the construction of a spatial database with maps of land use and land cover.
Based on this information, a group of producers was selected for in-depth analysis of the types, quantities and sales values of food sold in 2025. The case study focused on the Associação de Trabalhadoras(es) Rurais Anna Primavesi (Anna Primavesi Association of Rural Workers) of the State of Pará, located in the Abril Vermelho (Red April) settlement in Santa Bárbara do Pará. Composed mostly of women, the association is dedicated to the agro-ecological production of plant-based foods, both fresh and minimally processed, such as fruit pulp. The association participates in the PAA’s Simultaneous Donation scheme, which allocates the food it buys to people suffering from food and nutritional insecurity.
Dimensions related to sustainability and climate justice in local food systems were adopted as axes of analysis, considering local and diversified production, respect for food culture, conservation of socio-biodiversity, access to land, care and recovery of soils and valuing intersectorality between policies, the environment and development.
RESULTS
The RMB has 2,370,545 inhabitants spread over eight municipalities: Belém (1,303,403), Ananindeua (478,778), Castanhal (192,256), Barcarena (126,650), Marituba (111,785), Santa Izabel do Pará (73,019), Benevides (63,567), and Santa Bárbara do Pará (21,087)20. In this territory, there are 929 public schools, 61% of which are municipal, 38% state, and less than 1% federal17. Of these, 743 are in urban areas and 186 in rural areas. In Belém, Ananindeua, and Marituba, more than 90% of schools are in urban areas, while in Barcarena, Santa Izabel, and Santa Bárbara do Pará rural schools predominate, with only 36%, 38% and 46% in urban areas, respectively17. In the RMB, 390,552 students are enrolled, with the majority (32.4%) in the initial years of primary education, followed by the final years (28.4%), secondary education (19%), early childhood education (12.5%), and youth and adult education (7.6%).
In 2022, the municipalities of the RMB spent R$ 31,000,322.76 on food purchases using federal PNAE funds, of which R$ 13,474,340.72 (43.5%) was spent on family farming products (Table 1). Considering the total number of students (390,552), the total expenditure corresponds to a per capita average of R$ 79.38 (R$ 0.40 per day, considering 200 school days), of which R$ 34.50 (R$ 0.17 per student per day) was derived from family farming.
Total values and suppliers of family farming to the National School Feeding Program in the Belém Metropolitan Region, 2022.
The food groups with the highest volume of spending on family farming were: fruit (69.6%), vegetables (6.2%), spices (4.1%), flour (3.9%), and eggs (3.4%). When considered individually, the foods that led spending were bananas (17.2%), açaí (11.2%), watermelon (7.0%), oranges (6.8%), guava (5.5%), tangerines (5.2%), flour (3.9%), and eggs (3.4%) (Table 2).
The Abril Vermelho (Red April) settlement in Santa Bárbara do Pará covers 6,803 hectares. The occupation began in 2004 and was made official in 2009, bringing together 370 producer families. Among the products sold to the PAA were fruit (43.9% of the total value), spices (19.5%), vegetables (19.2%), legumes (13.6%), tubers (2.2%), and beans (1.4%). Considering individual foods, the highest sales were for spring onions (10.4%), peppers (10.3%), papaya (8.6%), pumpkin (8.0%), peach-palm fruit (7.6%), cassava (6.6%), açaí pulp (6.6%), and bananas (6.0%). In terms of volume sold (kg), the most significant groups were vegetables and tubers (53.6% of the total weight) and fruit (49.7%). Individually, the foods that topped the volume sold were: pumpkin/jerimum (22.6%), cassava (17.7%), bananas (12.2%), peach-palm fruit (8.2%), cocoa (5.9%), and açaí pulp (5.0%) (Table 3).
Marketing values and quantity of food sold to the Food Acquisition Program - Simultaneous Donation by the Associação de Trabalhadoras(es) Rurais Anna Primavesi of Pará, 2025.
DISCUSSION
Characterizing the profile of the schools and students served in the RMB helps to understand the demand for food and the challenges involved in supplying it. The municipalities of the RMB show great heterogeneity in terms of the distribution of the population and, consequently, of the students in public schools. These differences directly affect the potential for articulation with local agricultural production and the incorporation of these foods into PNAE purchases. It is also necessary to consider the different costs of access to food, especially in municipalities with many schools in island territories, a marked characteristic of the Amazon.
In 2022, municipalities invested a significant number of resources in the PNAE, with an average of 43.5% going to family farming. This percentage exceeds the minimum of 30% required, indicating that the region has made progress in complying with Law 11947/200914. Only two of the eight municipalities in the RMB did not reach the target, although they were close (Castanhal, 25.4%, and Santa Izabel do Pará, 29.2%). These results follow the upward trend in purchases from family farming observed in the historical series of the Fundo Nacional de Desenvolvimento da Educação (FNDE – National Fund for Educational Development) between 2011 and 2022, except for the drop recorded in 2020–2021, due to the Covid-19 pandemic21.
The prominence of fruit in purchases, which accounted for around 70% of family farming resources, shows the appreciation of fresh foods and regional and seasonal products, such as bananas, açaí, watermelon, oranges and tangerines, which together accounted for most of the spending. Then there was the presence of flour, mainly cassava flour, as the most representative non-fruit food in purchases, reinforcing the participation of family farming in the supply of culturally and nutritionally important food in the region. The composition of purchases reveals the potential of family farming to promote diversified, healthy school meals adapted to local realities, in line with the Guia Alimentar para a População Brasileira (Dietary Guideline for the Brazilian Population)22.
However, the other food groups (such as vegetables, animal proteins, legumes, and socio-biodiversity products) had a reduced share of the total resources invested. This scenario indicates an important space for expanding food diversity23, which depends on tackling structural limitations, such as logistical fragility, bureaucracy in purchasing processes, low technical assistance and difficulties in organizing local production. In addition to these factors: climatic challenges, which already affect production; the presence of intermediaries in marketing, especially middlemen; and the seasonal dynamics themselves, since the Amazonian winter imposes additional restrictions on family farmers, especially in the production of vegetables24,25. Overcoming these obstacles could favor the inclusion of a wider range of foods from family farming, strengthening the nutritional, social and economic impacts of the PNAE.
In Brazil, family farming (Law nº 11.326/2006) comprises units with up to four fiscal modules, based predominantly on the collective work of the family itself. It is a heterogeneous and multidimensional category, expressed in different productive, cultural, social and environmental dimensions26, essential for building sustainable food systems and promoting climate justice. Recognizing and strengthening family farming is fundamental to consolidating it as a structuring axis for public policies aimed at sustainability and climate equity. Valuing their production in institutional markets expands access to local food, even in remote regions, ensuring diversity, seasonality and respect for food cultures. From the perspective of climate justice, it is important to recognize that these farmers are among those most affected by climate change and, at the same time, play a strategic role in conserving socio-biodiversity, mitigating deforestation and recovering degraded ecosystems.
The interpretation of the results on PNAE spending and purchases from family farming requires caution, as it only considers federal resources passed on by the FNDE. All the municipalities in the RMB, except Barcarena, reported having supplemented this amount with their own resources. In Ananindeua and Santa Izabel do Pará, this amount exceeded 100% of the federal amount. These additional funds were also used to purchase food, which may include purchases from family farming, although it was not possible to verify this information, as this data was not available.
The experience of Santa Luzia do Pará, described by researchers from the Universidade Federal Rural da Amazônia25, shows the potential of the PNAE to promote income, social inclusion and the organization of production, especially when there is technical support, planning and an institutional structure. However, its effectiveness tends to be compromised in contexts of administrative fragility. Meeting the target of 30% of PNAE resources going to family farming is more frequent in municipalities with greater technical capacity, stable teams, active councils and qualified managers. The existence of Declarations of Aptitude to PRONAF (replaced by the National Family Farming Register) and the organization of producers into cooperatives also favors the success of the program27. These elements reinforce the importance of structuring policies with ongoing institutional support, enabling the sustainability of family farming purchases.
Based on the last two Agricultural Censuses, family farming accounts for 89% of agricultural establishments in Belém, although it only occupies 7.9% of the area devoted to this activity in the RMB12. Female participation in management is 37.4%, exceeding the national (18.6%) and state (20.4%) averages. As for sustainable practices, 97% of producers said they did not use pesticides or chemical fertilizers. Between 2006 and 2017, temporary and permanent crop areas in the RMB fell by 55.5% and 12.0%, respectively, considering only productive areas (excluding Permanent Preservation Areas, Legal Reserves, and SAFs). In Belém, the reduction in temporary crops was even greater, reaching 87%. The only exception was the 45% increase in permanent crop areas, which may indicate an intensification in the cultivation or management of native species of economic interest, often associated with extractivism12.
Belém’s GHG emissions inventory (2018–2022) recorded 1.68 MtCO2e in 2018 and 1.7 MtCO2e in 2021, with decreases in 2020 and 2022, influenced by economic recession, Covid-19 and population decrease28. The transport sector led emissions, followed by stationary energy (production, transformation, distribution and consumption in fixed energy sources) and waste (landfills and domestic effluents), while the Agriculture, Forestry and Other Land Use sector had a relatively low contribution. Even so, the dynamics of land use remain central to climate analysis. In the RMB, for example, there has been a loss of approximately 201 km2 of forest cover in the last 15 years, equivalent to 17% of the original green area29. In Pará, deforestation fell by 28% in 2024, with the deforested area dropping from 3,299 km2 to 2,362 km230. Incorporating this data into the analysis of food procurement policies shows that productive arrangements based on family farming, especially through SAFs and natural regeneration practices, not only expand FNS but also contribute to mitigating forest losses and strengthening climate resilience.
In addition to lower impact practices, in 2023, family farming in Belém had a higher production value than non-family enterprises (R$ 8,338 versus R$ 6,342)12. In both cases, permanent crops were more profitable, especially açaí, banana and cocoa. These results converge with the findings of this study, which identified bananas and açaí among the foods with the highest volume of PNAE resources in the RMB and valued by the local food culture.
The greatest production diversification among family farmers in Belém occurred in the PRONAF B group (microcredit for families with a gross annual income of up to R$ 50,000)12. In contrast, the highest production value of family farming comes from the PRONAF V group, aimed at farmers with variable incomes and working in SAFs, with permanent crops, plant extraction and poultry farming. Overall, plant production accounts for 95.4% of the value of Belém’s agricultural production, which is in line with the findings of this study, which identified 83.8% of the amounts invested via the PNAE in the RMB in food of plant origin. Among animal products, eggs lead the way, accounting for 3.4% of the amount purchased from family farming.
The MST settlements located in the RMB that were involved in the ANR project – João Batista II (Castanhal), Mártires de Abril and Paulo Fonteles (Mosqueiro Island), and Abril Vermelho (Red April) – share similar land use characteristics. Historically, these areas were used for monocultures, such as cattle, coconut, oil palm, or rubber plantations, resulting in degraded, sandy soils and little productivity. However, since the occupation and the beginning of MST’s work in the late 1990s, these territories have started to adopt practices aimed at soil recovery and diversified food production19.
Currently, land use and occupation in these settlements predominantly includes pasture, capoeira, SAFs, areas of natural regeneration (or ANR) and heritage areas such as homes, schools, churches and health centers. SAFs and natural regeneration are central agroecological strategies for recovering the soil and promoting sustainability, incorporating a greater diversity of native species adapted to extreme climatic events, such as muruci (Byrsonima crassifolia) and cashew (Anacardium occidentale), which contribute to soil fertility and income generation19. Challenges persist, however, such as low natural fertility and land conflicts, which impact production and environmental restoration19,31. Even so, family farming in these territories is capable of supplying public procurement programs with variety and volume, as in the case of the Abril Vermelho (Red April) settlement, which sold 28 tons of food to the PAA in 2025, with an emphasis on permanent crops such as spring onions, peppers, pumpkins and cassava.
These examples show that, in the face of climate change, which threatens agricultural and food systems and FNS, it is essential to strengthen local communities. Encouraging agroecology, increasing climate resilience and improving the nutritional status of populations must be priorities31,32. This requires multi-sectoral approaches that promote dialogue between diverse groups, including farmers, traditional communities, women, and young people, tackling structural inequalities of race, gender, class, and generation. Ensuring that children consume local food, from family farms and with low pesticide use, in addition to the cognitive and health benefits, is also an expression of climate justice. Today’s children will face the effects of a more degraded planet; ensuring adequate food in public schools is therefore a form of reparation and commitment to their future.
School feeding programs and sustainable public procurement materialize climate justice by prioritizing agroecological systems, local chains and SAN. These initiatives reduce emissions, strengthen regional economies and transform local experiences into effective climate action, in line with the Sustainable Development Goals (SDGs), especially SDG-2 (Zero Hunger/Sustainable Agriculture), SDG-12 (Responsible Consumption/Production) and SDG-13 (Action Against Global Climate Change). By offering a space for global dialog, COP30 presents itself as a strategic opportunity to project and expand these practices, linking sustainable development and socio-environmental justice on an international scale.
In conclusion, this study broadens our understanding of the dynamics surrounding the implementation of institutional purchasing policies, such as the PNAE and PAA, in the RMB, highlighting their potential to strengthen family farming and promote more sustainable land use. Understanding these interactions is fundamental to improving public policies that integrate FNS, territorial development and climate justice, especially given the strategic opportunity of COP30 to leave a regional legacy at this interface. Analyzing the relationships between production, consumption and territory is an essential step towards building more sustainable, inclusive and resilient food systems in the Amazon.
The evidence indicates that public purchases via the PNAE, combined with the PAA case study, have concrete potential to strengthen the climate justice agenda by recognizing the unequal distribution of the impacts of climate change. Practices linked to family farming and agroecology are central to this process, as they promote environmental preservation, the reduction of GHG emissions and the conservation of biodiversity, while at the same time valuing traditional knowledge, ways of life and local cultural practices. Thus, food systems must play a central role in climate change adaptation strategies, and policies such as the PNAE and PAA offer concrete and viable paths towards this goal.
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Data Availability:
The research was based exclusively on the analysis of secondary data, from public sources.
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Funding:
Climate and Society Institute (iCS - process D-24-01752). Conselho Nacional de Desenvolvimento Científico e Tecnológico (CNPq - process 444588/2023-0).
Edited by
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Associate Editor:
Semíramis Martins Álvares Domene https://orcid.org/0000-0003-3003-2153
The research was based exclusively on the analysis of secondary data, from public sources.
